A Complex Intergovernmental Problem: Why Asylum Seekers Challenge Canada’s Immigration System

Abstract After years of collaboration in the immigration sector, Canada faces unprecedented intergovernmental tension due to a surge in irregular arrivals and asylum seekers. Most attribute this conflict to the scale of the arrivals. We argue it is the nature of asylum seekers as a “complex intergovernmental problem” that explains the recent turn in relations. Complex intergovernmental problems (CIPs) are a unique form of policy problem that result from a novel, boundary-spanning, intractable, and politically salient issue unfolding within an intergovernmental system that is ill-suited to manage the situation. In this article, we develop the concept of CIPs and trace how the archetypical example of asylum seekers has challenged the foundations of cooperative intergovernmental relations and driven conflict in Canada. Our account shows that starting in 2017 the immigration system responded with operational collaboration and ad hoc innovations. However, the system has failed to lock in these adaptations and build common norms on the respective roles of governments. The result has been escalating conflicts over resources and threats of service withdrawals. Our analysis suggests that adopting a problem-centric approach sensitive to the attributes of a policy challenge and how they interact with the existing intergovernmental system could enhance the understanding and management of CIPs, which are becoming more prevalent across federations.